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Cooperation Between the ADB and NGOs

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The NGO Sector

A. NGO Definitions

In its broadest sense, the term "nongovernment organization" refers to organizations (i) not based in government; and (ii) not created to earn profit. While this broad definition of an NGO is correct semantically, it presents a problem in that it embraces a large number and wide range of organizations that structurally and functionally are unrelated. This broad definition of NGO refers more to what an organization is not, rather than to what it is, and can be applied to many organizations.

The Bank is concerned primarily with developmental NGOs. Developmental NGOs can be regarded as private organizations entirely or largely independent of government, not created for financial or material gain, and addressing concerns such as social and humanitarian issues of development, individual and community welfare and well-being, disadvantage, and poverty, as well as environmental and natural resources protection, management, and improvement. While the Bank's interest is directed primarily toward organizations that do not exist to serve their members' self-interests, the Bank still must be concerned with organizations such as self-help, and people's and community-based organizations formed by or around disadvantaged persons, groups, and communities.

B. Typologies of NGOs

A wide range of organizations can be regarded as developmental NGOs. These groups vary significantly according to philosophy, purpose, expertise, program approach, and scope of activities. Important distinctions can be drawn with regard to (i) the functional roles of different types of NGOs; (ii) the differing roles of NGOs on the continuum of NGOs from the local level, to the national level, and to the regional and international levels; and (iii) the operational orientations and approaches of different kinds of NGOs.

Recognition of the distinctly different roles and functions of different kinds of NGOs, and recognition that a single NGO can assume several roles and functions are important for establishing a context for the Bank's overall program of cooperation with NGOs and focusing cooperation with NGOs in specific areas.

1. Operational/Advocacy NGOs

A significant functional distinction exists between operational and advocacy NGOs. This distinction is important with regard to the kind of interaction the Bank has with individual NGOs, such as operational cooperation and collaboration versus policy dialogue. The distinction is a reflection of the developmental roles that individual NGOs fulfill.

Operational NGOs can be regarded as NGOs whose primary areas of activity are directed toward the contribution or delivery of development or welfare services, including emergency relief, and environmental protection and management. Reflecting the range of issues and interests that have emerged in development and welfare and in relation to the environment, operational NGOs display a range of programs, organizational structures, operational orientations, and areas of operation, both program-related and geographical. Operational NGOs exist at the local or community level, district and national levels, and regional and international levels.

Advocacy NGOs can be regarded as NGOs whose primary orientation is toward the advocacy of policies or actions that address specific concerns, points of view, or interests. In the context of development, advocacy NGOs work to influence the policies and practices of governments, development institutions such as the Bank, other actors in the development arena, and the public. Advocacy NGOs more often exist at national and international levels. While often working individually, advocacy NGOs increasingly are forming national and international networks and consortia that link groups with parallel or convergent interests. Most often, advocacy NGOs exist to serve as a voice that they consider otherwise would not be heard in social, economic, and political processes.

Despite differentiations between operational and advocacy NGOs, in many cases it may not be possible to characterize an NGO entirely as operational or advocacy. Some operational NGOs do focus entirely on service delivery and do not possess an analytical or advocacy base; some advocacy NGOs are oriented entirely toward activities such as policy analysis and advocacy of development processes. However, most NGOs are involved in a mix of activities. The Bank increasingly is encountering operationally oriented NGOs engaging in advocacy work related to their respective areas of operation.

2. Level of Operations

Among operational NGOs, it is possible to distinguish between international-level NGOs, often headquartered in developed countries; national-level NGOs, whose orientations are toward issues and interests in the countries in which they are based; and local-level or community-based NGOs that generally exist to address concerns in relatively localized geographical areas.

Operational level has relevance to the kind of cooperation or collaboration that can be established between the Bank and NGOs. NGOs operating at the community level often reflect memberships comprising individuals who have come together to address immediate community-based interests. While often possessing limited technical or implementation capacity, community-level NGOs can be especially significant in projects that require identification of local needs or direct beneficiary participation. NGOs with greater operational capacity can play larger roles, for example, in the identification, design, and implementation of projects or components of projects, or in consultations leading toward policy and program development.

NGOs operating at the national and international levels often have important technical and organizational capacities. In some cases, larger and more capable NGOs can serve as intermediaries between governments, development agencies, and other NGOs, channeling information, resources, and technical support. Some international NGOs, and some national NGOs, have become capable in a number of roles, including provision of donor support to smaller NGOs. NGOs at every level increasingly are cooperating and collaborating in networks and consortia, sectorally and at the national and international levels.

3. Orientation of Activity

Individual NGOs reflect differences in philosophy, purpose, specialization, and operational approach. For operational purposes, NGOs can be classified by characteristics such as (i) purpose, for example, religious versus secular; (ii) operational orientation, for example, a relief and welfare orientation versus a development orientation; (iii) approach, for example, service delivery versus participatory activities; and (iv) degree of openness, for example, a large degree of openness and public exposure versus a more closed, private character, or willingness to cooperate with institutions such as the Bank. Factors such as these have great bearing on and relevance to any operational cooperation or collaboration the Bank might establish with NGOs.

C. Characteristics of NGOs

A strength of NGOs, particularly those operating at the field level, is their ability to form close linkages to local communities, and to engender community ownership and participation in development efforts. NGOs often can respond quickly to new circumstances and can experiment with innovative approaches. NGOs can identify emerging issues, and through their consultative and participatory approaches can identify and express beneficiary views that otherwise might not be heard. NGOs often are successful intermediaries between actors in the development arena, building bridges between people and communities on one side, and governments, development institutions, and donors and development agencies on the other. In an advocacy role, NGOs frequently represent issues and views important in the dynamics of the development process.

At the same time, limited technical capacities and relatively small resource bases may characterize some NGOs. NGOs sometimes may have limited strategic perspectives and weak linkages with other actors in development. NGOs may have limited managerial and organizational capacities. In some countries, the relationship between NGOs and government may involve political, legal, ideological, and administrative constraints. Because of their voluntary nature, there may be questions regarding the legitimacy, accountability, and credibility of NGOs and their claims as to mandate and constituencies represented. Questions sometimes arise concerning the motivations and objectives of NGOs, and the degree of accountability NGOs accept for the ultimate impact of policies and positions they advocate.

D. Diversity Within the NGO Sector

An important characteristic of the NGO sector overall is its diversity. This point is particularly important in the context of the Bank's approaches to cooperation with NGOs. As noted, the term NGO is broad and describes many kinds of organizations. NGOs display diversity in aspects such as purpose, mandate, philosophy, orientation, clientele, role in development, and size and scope of operations. In the Bank's region, NGO communities display significant differences country by country, reflecting country-specific factors that affect the structure and composition of NGO communities and the role NGOs play in national development. Because of the diversity the NGO sector displays, operationally and in the context of individual countries, it would not be appropriate, and perhaps counterproductive, for the Bank to approach cooperation with NGOs through generalizations or with a single view or strategy. While within the framework of an overall approach to cooperation with NGOs, given the various levels on which the Bank and NGOs work together and the individual sets of country-specific circumstances that are encountered, it would be desirable that the Bank approach cooperation with NGOs flexibly and with a view to relationships with NGOs as a series of relationships rather than one single relationship.

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